P1 POLICY REPORT URBAN STRUCTURE Date: April 9, 1996 Dept. File No. HR TO: Vancouver City Council FROM: Director of Community Planning SUBJECT: Dundas-Wall "Let-Go" Industrial Area - Land Use Review and Rezoning Referral RECOMMENDATIONS A. THAT Council confirm the M-1 industrial zoning and status of the lands shown as Area 1 in Figure 1, and remove their "let-go" designation. B. THAT the Director of Land Use and Development be instructed to make application to rezone Area 2 (park) shown in Figure 1 from M-1 to RS-1; FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-law; AND FURTHER THAT the application and by-law be referred to a Public Hearing. C. THAT the Director of Land Use and Development be instructed to make application to rezone Area 3, shown on Figure 1, from M-1 to C-2; FURTHER THAT the Director of Legal Services be instructed to prepare the necessary by-law; AND FURTHER THAT the application be referred to a Public Hearing. GENERAL MANAGER'S COMMENTS The General Manager of Community Services RECOMMENDS approval of A, B and C. COUNCIL POLICY Truck Routes and Residential Rezoning Policy Council on March 23, 1982, resolved: That when planning to rezone areas for residential use, the City be wary of potential incompatibility with truck routes; that insofar as possible new or altered residential zones be located away from truck routes; that in those cases where new or altered residential zones must be located adjacent to truck routes, environmental protection such as double glazing, noise berms, setbacks, etc., be required. Industrial Land Policy Council on July 10, 1990, resolved: That 270 acres be released from industrial uses, and that the Director of Planning, in consultation with the Director of Housing and Properties and the City Engineer, review land use options and recommend new zoning schedules, including residential where appropriate. (Note: The Dundas-Wall industrial area was included in these 270 acres.) Housing Opportunities Strategy Council on April 9, 1991, resolved: To identify new housing opportunities in the city by planning for housing on surplus industrial lands using existing staff. PURPOSE AND SUMMARY The purpose of this report is to recommend land use directions and rezoning for the Dundas-Wall industrial area. The report reviews current land uses and zoning, presents possible directions for rezoning, and describes the public consultation process. The Dundas-Wall "let-go" industrial area is located in northeast Vancouver. This M-1 zoned area has a mix of industrial and commercial uses, and park land. Staff analyzed the existing role and land uses, and propose land use directions for three sub-areas, as shown on Figure 1 on the next page. Staff recommend that Area 1 retain its industrial use, with M-1 zoning (soon to be updated to I-2), as this area serves as a buffer between the Port of Vancouver and heavy industrial uses, and residential and commercial uses. Area 2 is park land. Staff propose that it be rezoned to RS-1, the zoning common to most parks in the City. Staff propose that Area 3 be rezoned to C-2. It no longer functions as an industrial area, and C-2 zoning would provide an opportunity for additional housing, and commercial services compatible with adjacent residential uses. Property owners, business tenants and area residents were consulted and generally support the proposals. If the rezoning of Area 3 is approved, staff recommend that DCLs be charged for new construction within this area. (DCLs are the subject of a separate report.) Figure 1. Land Use, Zoning and Area Boundaries BACKGROUND 1. Study Area Description and Zoning The study area is located in the Grandview-Woodland local area. It is approximately 2 ha (4.6 ac.) in size (net of streets and lanes); it is zoned M-1 and was designated as "let-go" in 1990. The M-1 zoning allows for a maximum height of 30.5 m (100 ft.) and a maximum FSR of 5.0. The area has a mix of industrial, commercial, and institutional uses, including food manufacturers and wholesalers, King Edward Campus North, a corner mini-mall, and park land. There is a new development under construction, at the northwest corner of the study area (former Lumberland site). This development includes a four-storey building with artist live/work studios, a service station, ancillary retail, and 3 restaurants. The study area is bisected by Powell/Dundas Street which is a major arterial and a truck route. 2. Surrounding Area Description and Zoning To the north of the study area are CPR rail lines, which are used 30 to 40 times daily and also carry hazardous materials. The Vancouver Port Corporation (VPC) owns the lands north of the rail lines. The VPC lands were rezoned from M-2 to CD-1 in 1990 on an interim basis, to provide for increased City input to the form and compatibility of proposed port development. The area to the east and south is zoned RM-3A, and is developed with four-storey apartment buildings. The CD-1 on Semlin Drive is developed with two-storey multiple dwellings. Hastings Street, further south, has a mix of C-2C and C-2C1 zoning, and mixed commercial uses. To the west, M-2 heavy industrial zoning and uses predominate. DISCUSSION 1. Land Use Directions and Zoning Recommendations Staff reviewed the current land uses and role of the study area, and concluded that it should be divided into three areas, shown on Figure 1. (a) Area 1 Area 1 serves as a buffer between the existing industrial and port uses, and the adjacent residential and commercial uses. Staff recommend that the existing M-1 zoning be retained for this area, to be updated to I-2 when that district schedule is put in place, and that the "let-go" designation be removed. The long narrow portion on the east side of Semlin from Dundas to Hastings should remain industrial for the following reasons: - it acts as a light industrial buffer between the heavy industrial area to the west, and the residential area to the east, thereby reducing land use compatibility problems; and - in most cases, the property ownerships straddle the M-1/M-2 zoning boundary. The balance of Area 1, to the north, is the former Lumberland site that is being redeveloped under the existing M-1/I-2 zoning. A change in zoning would make the new development non-conforming. (b) Area 2 Area 2 includes existing Oxford Park, Cambridge Park and an adjacent triangular parcel, as shown in Figure 1. Park Board recently acquired the triangular parcel for park purposes, recognizing Grandview-Woodland's deficiency in park space, and to help address the increased park demand from new development in the Dundas-Wall area. Staff propose that Area 2 be rezoned to RS-1, as is most park land in the city. Park Board staff agree with this proposal. (c) Area 3 Area 3 already contains numerous commercial uses. Currently, approximately 35% of the land is in industrial use, 52% is in non-industrial use, and 13% is vacant. Staff believe that mixed commercial and residential use should be encouraged in this area, for the following reasons: - most of the area no longer functions as industrial; - there is an opportunity for small neighbourhood commercial services and increased housing; and - mixed-use would be more compatible with adjacent residential. Staff have investigated the various mixed-use C zoning schedules, and recommend C-2 as the most appropriate, because: - it permits the broadest range of commercial service, retail and office uses, alone or in combination with residential uses; - it provides for a scale that is compatible with adjacent multiple dwellings: maximum building height permitted is 12.2 m (40 ft.). Maximum density allowed is 3.0 total, of which the residential maximum is 2.5; and - it has a set of residential guidelines in place to ensure livability of residential units, particularly in mixed-use situations and on busy streets. Other C-2 type zones have less extensive guidelines. Under the recommended C-2 zoning, five existing businesses (mainly food processing) could become legally non-conforming. Under C-2, these uses could continue to legally exist, but could not be expanded. Of the zoning schedules that provide for mixed-use residential development, C-2 is the most appropriate. While it still contains the potential for all-office development, staff research indicates that this is unlikely here. However, staff note that the all-office potential is a concern in other C-2 areas of the city. In the future, the creation of a variation of the C-2 schedule may be desirable to limit this all-office potential to certain areas of the city. The appropriate time to pursue this would be with the CityPlan Neighbourhood Visioning, when communities will have the opportunity to consider the pattern of commercial uses in their areas. 2. Public Input Staff wrote all the property owners (8) of Sub-Area 1, notifying them of the proposal to retain the existing M-1 zoning. There was no response. With respect to Area 3, staff met with, and surveyed the landowners (9) and business tenants (12), advising them of the proposal to rezone to C-2. Six responded--four owners in favour of the proposed rezoning, and two business tenants opposed to it. One of the opposed tenants stated that the proposed change would not benefit his processing business. (a) Surrounding Area Staff sent notices to 93 property owners and 276 residents living around Sub-Area 3. The response was two telephone enquiries about the proposal details, and one letter expressing concern about the loss of private views. Staff acknowledge this possibility, and note that views could also be lost with redevelopment under the current M-1 zoning. (b) Community Groups Staff notified the Grandview-Woodland Area Council, the Kiwassa Neighbourhood House, and the Burrardview Neighbourhood Association of this proposal. Only the latter group expressed concerns, regarding additional commercial uses in the area attracting prostitution and other criminal behaviour. Staff met with this group to explain the proposed rezoning, noting that the amount of commercial development likely to be built in a C-2 zone (ground floor only) is no greater than that permitted in the current M-1 zone. Since development would have strata-title residential above, marketing considerations make it less likely that 24-hour or late night businesses would be located at grade in C-2 developments. In addition, the residential uses will add an element of 24-hour surveillance which the area currently lacks. 3. Development Cost Levies If Council approves the rezoning of Area 3 at Public Hearing, staff recommend that Development Cost Levies (DCLs) be charged for new construction within this area. DCLs are the subject of a separate report to Council. SOCIAL IMPLICATIONS There are no major positive or negative social implications to the proposed rezoning. There are no implications with respect to the Vancouver Children's Policy or Statement of Children's Entitlements. ENVIRONMENTAL IMPLICATIONS The proposed rezoning will provide opportunities for higher density housing, close to transit and work places. This may help reduce traffic demands, with consequent benefits to air quality. CONCLUSION Area 1 acts as a light industrial buffer to the heavy industrial area to the west, and the Port to the north. Staff recommend that it retain its M-1 industrial zoning. Area 2 is park land. Staff recommend that it be rezoned to the RS-1 zoning common to most parks in the city. Area 3 has evolved from an industrial area to an area which is now predominantly commercial in use. A City-initiated rezoning to C-2, as recommended, offers an opportunity to allow for additional housing, and some neighbourhood commercial with guidelines to provide for livability. * * *